HAARDCORE JA Justification Redacted.pdf

Justification and Approval (J&A) for Other Than Full and Open Competition

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Was a J&A approved for the preceding acquisition where that acquisition required a J&A? Yes No

Is this a new or amended J&A Document? New Amended ( Prior to Award Only! )

Is this a Bridge Action as defined at DAFFARS 5302.101? Yes No

Dollar Value of this Acquisition: < $750K > $750K and < $15M > $15M and < $100M > $100M

Contracting Activity: AFRL/RQKPD

Purchase Request (if available) / Local ID Number:

Program / Project (and PE, if applicable): Hybrid AI and Autonomy Research and Development Considered Operationally Relevant and Explainable (HAARDCORE)

Program Type (PEO, Enterprise, of Operational): Enterprise

Authority:

6.302-1 – 10 USC 3204(a)(1), Only One Responsible Source - No Other Supplies or Services Will Satisfy Agency Requirements

Estimated Contract Cost (including options): $ 49.9M J&A Type: Class Individual

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I. Agency and Contracting Activity.

Air Force Research Laboratory (AFRL)/Aerospace Systems Directorate (RQ), Contracting Office (RQKPD).

II. Nature and/or description of the action being approved.

The Hybrid AI and Autonomy Research and Development Considered Operationally Relevant and Explainable (HAARDCORE) contract is a new, cost-plus-fixed-fee (CPFF) contract.

III. Description of supplies/services required to meet agency needs.

There is a need for explainable and transparent decision-making by autonomous systems that comprehend and adhere to the operational constraints delineated by the Mission Commander and the rules of engagement (ROE). To achieve USAF autonomy objectives, AFRL’s Power and Control Division (AFRL/RQQ) has developed with the University of Dayton Research Institute (UDRI) several Government-owned software products, tactical autonomy software frameworks and an AI Mission Management Autonomy software framework. These software frameworks form the basis of multiple past and on-going research and development efforts.

To continue AFRL/RQQ’s research and development efforts without significant delays, the USAF requires on-site contractor support which has extensive knowledge of, expertise in, and experience working with the following specific software suites, frameworks, development tools, and technical areas:

1. USAF Autonomy Core System software: Continue research and development in technical areas such as: autonomous mission planning, guidance, navigation, and control (NC), route planning, obstacle avoidance, flight maneuvers, coordinated/ uncoordinated flight behaviors, real-time processing of sensor data, dynamic decision-making, contingency management, integrated onboard edge computing, and vehicle and payload integration.

2. Mission Management Autonomy: Continue research and development of Mission Management Autonomy software.

3. USAF Open Mission Systems (OMS) architecture specification: Continue research and development of Mission Management Autonomy frameworks utilizing OMS-based architectures.

4. USAF Advanced Framework for Simulation Integration and Modeling (AFSIM) software: Perform integration, verification, validation, and evaluation activities utilizing USAF AFSIM software in support of continued research and development of Mission Management Autonomy frameworks.

5. USAF air vehicle mission concepts of operations (CONOPS): Continue research and development of Mission Management Autonomy frameworks through application of the software to address various USAF air vehicle CONOPS.

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6. Model-based systems engineering (MBSE) tools: Perform MBSE activities in support of continued research and development of and Mission Management Autonomy frameworks.

7. DevOps Continuous Integration/Continuous Deployment (CI/CD): Perform DevOps CI/CI pipeline implementation, automation, management, and maintenance activities in support of continued research and development of Mission Management Autonomy frameworks.

8. Work on base at Wright-Patterson AFB, Ohio, in Government facilities (multiple times per week) to collaborate with other R&D teams.

9. Provide required knowledge and experience at contract award to execute ongoing R&D projects without introducing program delays.

Under the HAARDCORE contract, research and development to enable the maturation and application of AI Mission Management frameworks to multiple programs will address the Air Force’s dire need for advanced uncrewed/ crewed aircraft autonomy and mission management capabilities. Specifically, this contract will support efforts delivering autonomy capabilities for transition to DOD customers.

All efforts will deliver software source code, software executables, software design descriptions, model-based systems engineering (MBSE) documentation, interface control documents, test and evaluation plans, and technical reports with unlimited rights.

The total estimated contract value is $49.9M, funded with RDT&E funding, with expected period of performance (POP) during Calendar Years 2025 through 2028.

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All products produced under this contract will be Government-owned with unlimited rights, which satisfies the program’s requirements and acquisition strategy.

IV. Demonstration that the contractor's unique qualifications or the nature of the acquisition requires use of the authority cited above.

Sub- section 1:

This effort began in 2009, when UDRI was involved with the initial development of the mission management autonomy framework. Thus, this follow-on contract would continue the research and development of the highly specialized AI Mission Management software frameworks which are key foundational components needed to complete the development and transition of the AFRL technologies. Therefore, this acquisition will be a follow-on contract for the continued development of highly specialized equipment.

Sub-section 2:

UDRI has provided specialized expertise to the USAF for the last 15 years for current and past USAF autonomy and related programs. UDRI's overall historical experience with the USAF autonomy efforts. Further, UDRI has led the research and development of the framework and has led the creation and development of the AI Mission Management Autonomy framework. The Mission Management Autonomy framework architecture framework are components to the overall autonomy strategy and are the focus of on-going research and development. UDRI's past and current involvement with these development efforts have enabled them to obtain extensive, highly specialized knowledge, expertise, and experience with the software products and additional skills notes in Section III which are necessary to execute AFRL/RQQC autonomy objectives. This knowledge, expertise, and experience is specialized, invaluable and critical for the successful execution of the multiple HAARDCORE autonomy efforts supporting the autonomy mission.

UDRI has extensive knowledge of, and expertise with all the following specific software suites, frameworks, development tools, and technical areas. This list corresponds to the performance requirements (PRs) listed in the RFI (request for information).

1. USAF Autonomy software

2. Mission Management Autonomy

3. USAF Open Mission Systems (OMS) architecture specification

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4. USAF Advanced Framework for Simulation Integration and Modeling (AFSIM) software

5. USAF air vehicle mission concepts of operations (CONOPS)

6. Model-based systems engineering (MBSE)

7. DevOps Continuous Integration/Continuous Deployment (CI/CD)

8. Work on base at Wright-Patterson AFB, Ohio, in Government facilities (multiple times per week) to collaborate with other R&D teams.

9. Provide required knowledge and experience at contract award to execute ongoing R&D projects without introducing program delays.

Sub-section 3:

AFRL/RQKP has determined that award to any other source would result in substantial duplication of cost to the Government that is not expected to be recovered through competition and unacceptable delays in fulfilling the Government's requirements.

Given current contracting practices, it is estimated that it would take a year to fully compete a contract. If awarded to a new source, the cost to reconstitute the highly specialized and extensive knowledge, expertise, and experience required to continue development is estimated to cost 9M+, although some may be irreplaceable. The new source would need to recruit and hire personnel with the required expertise and then train the personnel to gain knowledge and experience specific to the specialized software products under development. Even with an optimistic assumption that within a year the new source would have sourced and trained up to 30 highly specialized personnel to the level of current UDRI capabilities, this training may cost the Government up to $9M+ (30 FTE x $300K/year).

Thereafter, it would likely take a year for any contractor to acquire the knowledge to effectively work in ACS/YAK and the AI Mission Management software. This is due mostly to the extensive size of the code bases (3-4 million LOC for YAK) and gaining familiarity with the domain specific modeling language used in the AI Mission Manager framework.

Analysis is based on the costs incurred to perform the current and previous similar work.

Sub-section 4:

Accordingly, University of Dayton Research Institute, is the only firm capable of providing the supplies and services described in Section III above without the Government experiencing substantial duplication of cost that could not be expected to be recovered through competition and unacceptable delays in fulfilling its requirements.

V. Description of efforts made to ensure that offers are solicited from as many potential sources as practicable, including whether a notice was or will be publicized as required by subpart 5.2 and, if not, which exception under FAR 5.202 applies.

A sources sought solicitation was posted to SAM.GOV on 8 October - 23 October 2024 resulting in a response from 9 various small businesses and 12 large businesses, to include UDRI.

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AFRL technical experts evaluated the RFI responses based on the 10 areas listed in the RFI that the responders needed to meet and/or show extensive knowledge of, expertise in, and experience working with various tools and code. UDRI, demonstrated knowledge, expertise, and experience with all technical aspects of the RFI as well as the capability to provide on base support, have the proper security clearances and provide the knowledge and experience at contract award without introducing program delay.

VI. Determination by the Contracting Officer that the anticipated cost to the Government will be fair and reasonable.

In accordance with FAR 15.402, the contracting officer shall ensure this contract is procured at a fair and reasonable price.

UDRI shall submit certified cost or pricing data to support its proposal to determine the price offered is fair and reasonable.

Experienced technical analysts, cost analysts, and contracting specialists shall review the proposal. The contracting officer will utilize cost and price analysis to include use of historical pricing as the basis for negotiating a fair and reasonable price.

The anticipated cost to the Government is based on historical negotiated prices from relevant similar programs previously executed or currently being executed by AFRL/RQ.

VII. Description of the market research conducted and the results, or a statement of the reasons market research was not conducted.

A sources sought request was posted to SAM.GOV from 8 October - 23 October 2024 resulting in a response from 9 various small businesses and 12 large businesses, to include UDRI. Only one responding source, UDRI, demonstrated knowledge, expertise, and experience with all aspects of the RFI as well as the capability to provide on base support, have the proper security clearances and provide the knowledge and experience at contract award without introducing program delays.

Several of the other responding companies did demonstrate knowledge, expertise and experience with some of the performance requirements (PRs) of the RFI, however, the lack of experience with key software products and lack of experience in key technical areas would require a “ramp up” period for these sources to gain necessary developmental knowledge and experience with key software products and hire and train additional personnel to fill critical expertise gaps, resulting in significant delays and substantial duplication of costs that is not expected to be recovered through competition.

University of Dayton Research Institute (UDRI) demonstrated knowledge, expertise, and experience with all aspects of PR1, PR2, PR3, PR4, PR5, PR6, and PR7. UDRI has extensive experience directly working with mission management, OMS, AFSIM, air vehicle CONOPS, MBSE, and DevOps CI/CD pipeline management. For PR8, can provide on- site support as it is located close to WPAFB. For PR10, UDRI has the necessary experience and expertise with key software products and critical technical areas to execute this effort without delays. SUMMARY: UDRI is assessed as able to fulfill all of the performance requirements due to having the necessary experience and areas of mission management autonomy, OMS, AFSIM, air vehicle CONOPS, MBSE, and DevOps, in addition to having the ability to provide on-site support and personnel with property security clearances.

VIII. Any other facts supporting the use of Other Than Full and Open Competition.

N/A.

IX. List of any sources that expressed, in writing, an interest in the acquisition.

12 large businesses, to include UDRI

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X. A statement of the actions, if any, the agency may take to remove or overcome any barriers to competition before any subsequent acquisitions for the supplies or services required.

Due to the connectivity across programs, the requirements of this contract cannot be separated to develop a bigger competition pool. This contract focuses on the continued research and development of two key software products, and Mission Management Autonomy, which in some applications are integrated into a single system. All other requirements of the contract are supporting functions of the continued research and development of these software products. The extensive knowledge, expertise, and experience of the research and development team is integral to the timely success of the contract requirements. Under this contract, RQQ will work to make the Mission Management Autonomy software Autonomy Government Reference Architecture (A-GRA) compliant, thus providing future opportunities for other companies to compete and integrate with these software products. The current USAF A-GRA effort will drive standardization of autonomy interfaces, methods, and approaches, which should increase future integration, use, and development opportunities for autonomy products, to include government-owned products. However, due to the highly specialized nature of these autonomy products, some level of knowledge, expertise, and experience will always be required for core autonomy capability development.

XI. Certification by the Contracting Officer.

As evidenced by my signature above, I certify that this justification is accurate and complete to the best of my knowledge and belief.

XII. Certification by the technical/requirements personnel.

As evidenced by my signature above, I certify that any supporting data contained herein, which is my responsibility, is both accurate and complete.

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